Precisely. Why would anybody take the risk, and relinquish control of their money for decades with Governments free to raid it again later, or apply even higher tax rates to it upon withdrawal?
The issue with employer contributions is easily fixed: employers can just add the option for employees to take it as a cash benefit instead (effectively add it to salary), be taxed on it now, then do with it what they wish and thus avoid the double taxation that would be applied if tax relief at the point of contribution is reduced AND remove the risk of subsequent Governments trying to devise more ways to appropriate the money they've saved at a later date.
All serious reports into pensions have emphasised the importance of a stable platform of regulation because this is decades-long planning and people have to be able to trust that the goalposts won't be moved.
The suggestion in that linked study that because it's complicated to apply to DB schemes they should be exempted, even though they are already much better value and already receive far more favourable tax treatment is beyond crazy. So penalise those who already have pensions with less generous tax treatment by making theirs even more unfavourable and let those with generous tax treatment have even more advantage?
Quite obviously no sane Government would propose to do any of the above because it would harm productivity, reduce pension saving, increase welfare dependence, lower economic growth and business investment, increase skills shortages, undermine the basic principle of the entire pension system in the UK and therefore decimate pension saving, reduce overall tax revenue, reduce the workforce by encouraging earlier retirements, impose very large unnecessary costs on companies and HMRC and break key election pledges that this Government has made.
Let's hope there is a better plan for economic growth than that! Labour said they were focused on growth and everyone in the business community gave them the benefit of the doubt so to do something that would so obviously achieve the complete opposite on every possible measure at their first budget would likely damage their reputation and the goodwill for them as a new Government beyond repair and mean they're unlikely to get a second term. It would be pretty silly to hammer nails into your coffin when you've only just started when there are so many other measures they could take that would actually improve things in the UK.